THE REPUBLIC OF UGANDA - OAG · NGOs Non-Governmental Organizations PA Performance Appraisal ... Gender mainstreaming in the objectives of the district, programming and implementation

OFFICE OF THE AUDITOR GENERAL

T H E R E P U B L I C O F U G A N D A

GENDER MAINSTREAMINGIN WAKISO DISTRICT LOCAL

GOVERNMENT

V A L U E F O R M O N E Y A U D I T R E P O R TM A R C H 2 0 1 5



T H E R E P U B L I C O F U G A N D A

M A R C H 2 0 1 5V A L U E F O R M O N E Y A U D I T R E P O R T

GENDER MAINSTREAMINGIN WAKISO DISTRICT LOCAL

GOVERNMENT

AUDITOR GENERAL’S MESSAGE

AUDITOR GENERAL’S MESSAGE

31st March 2015

The Rt. Hon. Speaker of ParliamentParliament of UgandaKampala

REPORT OF THE AUDITOR GENERAL ON GENDER MAINSTREAMING IN WAKISO DISTRICT LOCAL GOVERNMENT

In accordance with Article 163(3) of the Constitution. I hereby submit my report on the audit undertaken on Gender Mainstreaming in Wakiso District Local GovernmentMy office intends to carry out a follow – up at an appropriate time regarding actions taken in relation to the recommendations in this report.I would like to thank my staff who undertook this audit, and the staff of Wakiso District Local Government for the assistance offered to my staff during the period of the audit.

John F. S. MuwangaAUDITOR GENERAL

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TABLE OF CONTENTS

LIST OF TABLES .................................................................................................................................. i

LIST OF FIGURES ................................................................................................................................ i

ABBREVIATIONS ................................................................................................................................. ii

EXECUTIVE SUMMARY ...................................................................................................................... iii

CHAPTER ONE ......................................................................................................... 1INTRODUCTION .................................................................................................................................. 2

1.1 BACkGROUND .................................................................................................................... 2

1.2 MOTIVATION ........................................................................................................................ 2

1.3 DESCRIPTION OF THE AUDIT AREA .................................................................................. 3

1.4 AUDIT OBJECTIVE .............................................................................................................. 5

1.5 SCOPE ................................................................................................................................. 5

CHAPTER TWO .........................................................................................................6AUDIT METHODOLOGY ....................................................................................................................... 7

2.1 SAMPLING .......................................................................................................................... 7

2.2 DATA COLLECTION AND ANALYSIS ................................................................................... 8

CHAPTER THREE ................................................................................................... 10SYSTEMS AND PROCESS DESCRIPTION ........................................................................................ 11

3.1 SYSTEMS DESCRIPTION .................................................................................................. 11

3.2 PROCESS DESCRIPTION ................................................................................................. 12

CHAPTER FOUR ..................................................................................................... 13

FINDINGS, CONCLUSIONS AND RECOMMENDATIONS ................................................................ 14

4.1 EXISTING GENDER EXPERTISE, COMPETENCE AND CAPACITY BUILDING ................ 14

4.2 GENDER MAINSTREAMING IN WAkISO DISTRICT: OBJECTIVES, PROGRAMMING AND

IMPLEMENTATION CYCLES, AND CHOICE OF PARTNER ORGANISATIONS ................. 16

4.3 INFORMATION AND kNOWLEDGE MANAGEMENT WITHIN WAkISO .......................... 21

4.4 STAFFING, DECISION-MAkING AND ORGANIZATIONAL CULTURE OF WAkISO

DISTRICT ........................................................................................................................... 26

GLOSSARY OF TERMS ...................................................................................................................... 30

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M A R C H 2 0 1 5 iGENDER MAINSTREAMING IN

WAKISO DISTRICT LOCAL GOVERNMENT

APPENDICES, LIST OF TABLES AND FIGURES

APPENDINCES ....................................................................................................... 31

APPENDIX I :ORGANISATIONAL STRUCTURE OF WAkISO DISTRICT .................................. 31

APPENDIX II:LIST OF DOCUMENTS REVIEWED AND PURPOSE.......................................... 32

APPENDIX III: LIST OF INTERVIEWS AND PURPOSE ............................................................ 33

APPENDIX IV: SCHEDULE SHOWING PGA PGA WORkSHOPS UNDERTAkEN .................... 33

APPENDIX V: AGENDA FOR THE PGA WORkSHOPS ............................................................. 34

APPENDIX VI: DETAILS OF THE SCORES PER DEPARTMENT/ LLG ..................................... 34

APPENDIX VII: ANALYSIS OF EMPLOYMENT BY GENDER AT THE HIGHER LOCAL

GOVERNMENTS ....................................................................................................................... 35

APPENDIX VIII: ANALYSIS OF EMPLOYMENT BY GENDER AT THE LOWER LOCAL

GOVERNMENTS ....................................................................................................................... 35

APPENDIX IX: ROLE MODELS AT THE HIGHER LOCAL GOVERNMENT ............................... 36

APPENDIX X: LOCAL GOVERNMENT ASSESSMENT CRITERIA FOR GENDER

MAINSTREAMING.................................................................................................................... 37

APPENDIX XI: ANALYSIS OF GENDER IN WAkISO DISTRICT’S PUBLICATIONS.................. 38

APPENDIX XII: GENDER QUALITY QUESTIONNAIRE FOR WAkISO LOWER LOCAL

GOVERNMENT STAFF ............................................................................................................. 40

LIST OF TABLESTABLE 1: MANAGEMENT RESPONSES TO ISSUES RAISED AND CORRESPONDING AUDIT

REMARkS ................................................................................................................................ 18

TABLE 2: SHOWING THE DISTRIBUTION OF STAFF MEMBERS AT THE DISTRICT

HEADQUARTERS ..................................................................................................................... 27

LIST OF FIGURESFIGURE 1: SHOWING FORA WHERE WAkISO DISTRICT STAFF INTERACT ......................... 23

FIGURE 2: SHOWING NUMBER OF MALE VS. FEMALE HEADS OF DEPARTMENT ............ 27

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M A R C H 2 0 1 5iiGENDER MAINSTREAMING IN WAKISO DISTRICT LOCAL GOVERNMENT

CAO Chief Administrative Officer

CBOs Community Based Organizations

CDO Community Development Officer

DDP District Development Plan

GFPP Gender Focal Point Person

HLLG Higher and Lower Local Government

HQ Headquarters

ILO International Labour Organization

LG Local Government

MDG Millennium Development Goal

MoGLSD Ministry of Gender Labour and Social Development

MoLG Ministry of Local Government

MoPS Ministry of Public Service

NDP National Development Plan

NGOs Non-Governmental Organizations

PA Performance Appraisal

PGA Participatory Gender Audit

UGP Uganda Gender Policy

LIST OF ABBREVIATIONS

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M A R C H 2 0 1 5 iiiGENDER MAINSTREAMING IN


BACKGROUNDGender mainstreaming is a government framework initiative for redressing gender imbalances, that is meant to be undertaken by all government agencies, including Local Governments.1 Article 21(1) of the Constitution of the Republic of Uganda, 1995 (as amended), guarantees equality of all persons under the law in all spheres of political, social and cultural life and the enjoyment of equal protection by the law in all aspects. In order to attain equitable service delivery, it is necessary to promote gender equality and women empowerment by ensuring equitable access to opportunities and participation in the development process.

KEy FINDINGS

Existing gender expertise, competence and capacity buildingThe district has three members of staff trained in gender mainstreaming; however, the three members of staff have not been able to transfer the knowledge obtained to other members of staff within the district. Although the district always budgeted for training of members of staff in gender mainstreaming, no funds were released for this activity. Technical Planning Committee (TPC) minutes had no evidence that sensitisation and capacity building on gender was carried out.

Gender mainstreaming in the objectives of the district, programming and

implementation cycles, and choice of partner organisationsAlthough the district has developed a gender policy and stated the promotion of gender equality and equity as one of its priority objectives and planned for gender activities, many gender activities have not been implemented over the years. In addition, the monitoring reports reviewed neither reported on the gender implications of projects and programs nor on the gender indicators for measuring and tracking of gender performance.

Furthermore, although the district had performed well in gender mainstreaming, according to the annual local government assessment results, there was no evidence in regard to gender analysis, gender disaggregated data, monitoring indicators, and consideration of gender specific needs in the capacity needs assessment. There was also no evidence that Gender Focal Point Persons (GFPPs) were appointed and posted. This raises questions over the criteria and basis of assessment used by the Ministry of Local Government.

EXECUTIVE SUMMARY

1 Uganda Gender Policy 2007, page V

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M A R C H 2 0 1 5ivGENDER MAINSTREAMING IN WAKISO DISTRICT LOCAL GOVERNMENT

Information and knowledge management within the district, and the gender

equality policy as reflected in its products and public image.The district does not consistently communicate a set of the minimum sex disaggregated data to be used by its departments and subcounties when reporting. In addition, during the Technical Planning Committee (TPC) meetings, gender issues and mainstreaming were not discussed. The district did not have a resource centre and the district website contained no gender reference materials and links, or gender disaggregated data.

Decision making, Staffing and Human resources, and Organizational cultureThe district had a ratio of men to women of 59% to 41% at the Higher Local Government (HLG) level and 63% to 37% in the Lower Local Governments (LLGs). However, women filled only 1 position out of the 4 at the senior management level and only 6 out of the 24 positions at the middle management level. Buildings at Wakiso district headquarters had ramps to ease accessibility for the disabled.

KEy RECOMMENDATIONS• The district should appoint Gender Focal Point Persons (GFPPs) for all departments

and subcounties, to facilitate basic training on matters of gender and ensure gender mainstreaming within the district.

• The district should prioritise gender issues, carry out detailed annual gender analysis and develop gender monitoring indicators.

• The district should ensure that all MoUs signed include commitments on gender, undertake capacity building of members of staff on gender mainstreaming and encourage sharing and discussion of gender issues and experiences during staff meetings.

• The district should institutionalise the collection and use of sex disaggregated data, establish a resource centre and ensure that gender-sensitive information and reference materials are uploaded to the website to facilitate knowledge sharing.

• Wakiso district should institute measures to encourage mentorship of the female staff to aspire more for leadership positions.

OVERALL CONCLUSIONWakiso district has achieved positive gains in gender mainstreaming over the years, especially the development of the district gender policy, among others. However, in light of the above findings, institutionalising gender mainstreaming across its activities is still a challenge within the district. More efforts in terms of prioritizing the collection and use of gender disaggregated data, the funding of gender activities, building the capacity of members of staff in gender matters, as well as monitoring are necessary for the district to achieve its gender mainstreaming objectives.

CHAPTER ONE

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M A R C H 2 0 1 5 1GENDER MAINSTREAMING IN


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INTRODUCTION

1.1 BACKGROUNDArticle 21(1) of the Constitution of the Republic of Uganda, 1995 (as amended), guarantees equality of all persons under the law in all spheres of political, social and cultural life and the enjoyment of equal protection by the law in all aspects. In order to attain equitable service delivery, it is necessary to promote gender equality and empowerment of women by ensuring equitable access to opportunities and participation in the development process. Gender mainstreaming is a government framework initiative for redressing gender imbalances, that is meant to be undertaken by all government agencies including Local Governments.2

Local Governments were created by the decentralization policy in 19973 with the aim of matching of public services to local preferences; increased accountability; reduced levels of bureaucracy, which would result in better public service delivery.4

Government sought to promote gender equality by pursing the strategy of gender mainstreaming, as espoused in the Uganda Gender Policy.

1.2 MOTIVATIONGender is a critical variable in the development process, and therefore, analysis of the social differences between men/boys and women/girls is necessary for promoting effective development. The analysis particularly addresses women’s interests in regard to their roles in relation to those of men, as women are the most disadvantaged in the Ugandan society.

Because of the importance of gender relations and how they affect service delivery, the Office of the Auditor General developed a strategy for auditing gender mainstreaming across government institutions. The first audit focused on the policy frameworks in place,5 the second audit looked at how the middle level agencies operationalized/implemented gender mainstreaming6; and this year (2014) the Office decided to audit the extent of policy implementation at the local government level.

Uganda has a decentralized system of governance in which Local Governments deliver direct services, such as: education, water, health, to the vast majority of the population of the country and thus have a huge influence on the gender relations in society.

CHAPTER ONE

2 Uganda Gender Policy 2007, page V3 Local Government Act of 1997 cf. Bashaasha, B. et. al (2011): IFPRI Discussion Paper 01063: Decentralization and Rural Service Delivery in Uganda; page iv4Op. cit;page 75 OAG, 2013: Government Efforts to promote gender equality as coordinated by Ministry of Gender, Labour and Social Development;6 OAG, 2014:Gender mainstreaming in the Rural Water Sub Sector by Ministry of Water and Environment;

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7 Ministerial Policy Statements for Ministry of Local Government for FYs 2011/12, 2012/13 and 2013/14 8 UBOS, 2013 Statistical Abstract; Table 2.1 C: Census Population (1991 And 2002) By Region and District and Estimated (2011, 2012 And 2013) Mid Year Population; page 103-1059 Wakiso District Five year Development Plan (2010/11 - 2014/15); Pg 110Uganda Gender Policy 2007 Page 2511 Millennium Development Goal 3 (2015)12 National Development Plan (2010/11-2014/15)

Amongst the 112 districts in Uganda, Wakiso district was selected for this audit because it receives the second highest amount of funding from the Central Government (UGX 119,071,3257) while serving the highest population (1,429,500 people, as at June 20138). Thus, failure to mainstream gender activities implies that a significant proportion of the population will be affected.

In light of the above considerations, the Auditor General decided to undertake an audit on gender mainstreaming in Wakiso district in order to evaluate the progress made by the district towards achieving gender equality. The Office also hoped to identify good practices as well as areas of improvement and make appropriate recommendations.

1.3 DESCRIPTION OF THE AUDIT AREA

1.3.1 General DescriptionWakiso district lies in the central region and covers a total area of 2,807.75 square kilometres.9 The sex ratio was 94 males to 100 females, implying that the number of females is more than that of males. (Wakiso DDP; Pg .3)

The district is divided into two counties (Kyadondo & Busiro) and a municipality- Entebbe Municipality. These are further sub-divided into fifteen sub-counties, six town councils (Kira, Nansana, Kakiri and Wakiso, Namayumba and Masuliita), and two town boards (Matuga and Kyengera).

All local governments are mandated by the decentralization policy to implement government policies, including gender mainstreaming, to enhance equitable service delivery. Gender mainstreaming was meant to be implemented through the existing district systems and processes, including district planning, budgeting, implementation, monitoring, and supervision. Gender mainstreaming is the responsibility of all government officers in the district but is spearheaded by the Community Development Officer (CDO) through the Department of Community Based Seriveces.

1.3.2 Regulatory Framework for GenderThe Uganda Gender Policy, 2007 requires all Higher and Lower Local Governments (HLLG) to promote gender mainstreaming so as to ensure equal access, participation and benefit from government resources, in order to address gender inequalities.10 The supporting framework for the implementation of gender mainstreaming is derived from: the Millennium Development Goals (MDG)11, National Development Plan (NDP)12, the Equity Budgeting guidelines for Higher and Lower Local Governments by Ministry of Gender, Labour and Social Development (MoGLSD), the National Budget Call Circular, and specific gender policies by the district, which require districts to mainstream gender in their plans and budgets.

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1.3.3 Objectives of gender mainstreaming The major goal for gender mainstreaming is to achieve gender equality and women’s empowerment as an integral part of Uganda’s socio-economic development.

Gender Mainstreaming Strategic Objectives

1. To reduce gender inequalities so that all women and men, girls and boys, are able to move out of poverty and to achieve improved and sustainable livelihoods;

2. To increase knowledge and understanding of human rights among women and men so that they can identify violations, demand access, seek redress and enjoy their rights;

3. To strengthen women’s presence and capacities in decision-making for their meaningful participation in administrative and political processes;

4. To address gender inequalities and ensure inclusion of gender analysis in macro-economic policy formulation, implementation, monitoring and evaluation.

1.3.4 Wakiso district Vision and MissionThe vision and mission of Wakiso district is:

Vision “A transformed Wakiso district community from semi-peasantry to a modern and urbanized district.”

District Mission “To provide effective, efficient and coordinated services to the community of Wakiso district for prosperity for all.”

1.3.5 Organizational StructureThe implementation arm of the district comprises the Technical Planning Committee (TPC) and the Departments. The Technical Planning Committee which is chaired by the Chief Administrative Officer (CAO), undertakes the overall co-ordination of programs with the Planning Unit while the department heads are supposed to ensure gender mainstreaming across all departments. These departments include: Administration, Finance, Statutory bodies, Production, Health, Education, Works, Natural Resources, Community Based Services, Planning, Internal Audit Unit and Procurement and Disposal unit.

For details, refer to Appendix I.

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1.4 AUDIT OBJECTIVEThe overall objective of the audit was to assess the extent to which gender mainstreaming had been institutionalised and implemented in Wakiso district.

The specific objectives were:

1. To assess the existing gender expertise, competence and capacity building in the district.

2. To evaluate the extent to which the district objectives, programming and implementation cycle, and choice of partner organizations enhanced gender mainstreaming.

3. To evaluate information and knowledge management within the district, related to gender mainstreaming.

4. To evaluate the extent to which the staffing and organizational culture of the district enhanced gender mainstreaming.

1.5 SCOPEThe focus of the audit was gender mainstreaming as implemented by Wakiso district through its administrative units (Headquarters, town councils and subcounties) for the financial years 2012/13 and 2013/2014.

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CHAPTER TWO

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CHAPTER TWO

AUDIT METHODOLOGy

The audit was conducted in accordance with the International Organisation of Supreme Audit Institutions (INTOSAI) performance Audit guidelines and the International Labour Organisation (ILO) Participatory Gender Audit (PGA) methodology. The standards and guidelines require that the audit should be planned in a manner which ensures that an audit of high quality is carried out.

The ILO PGA methodology establishes a baseline; identifies critical gaps and challenges; and recommends ways of addressing them, suggesting possible improvements and innovations.

The participatory nature of the audit enables district staff to play a role in the identification of deficiencies in gender mainstreaming and propose solutions. It also documents good practices towards the achievement of gender equality. This methodology assesses five key areas, which include:

1. Gender issues in the context of the work unit, and existing gender expertise, competence and capacity-building;

2. Gender in work unit objectives, programming and implementation cycles, and choice of partner organisations;

3. Information and knowledge management within the work unit, and gender equality policy as reflected in its products and public image;

4. Decision-making, Staffing and human resources, and organizational culture;

5. Work unit’s perception of achievement on gender equality.

The methodology involved the collection of data to establish deviations from gender mainstreaming requirements, identification of reasons for the observed deviations, and the effects these deviations had on the ability of the district to achieve its gender mainstreaming objectives.

2.1 SAMPLING Wakiso district has fifteen sub-counties, six town councils (Kira, Nansana, Kakiri Namayumba, Masuliita and Wakiso), and two town boards (Matuga and Kyengera).

For purposes of this Audit, the team selected a sample comprising the district headquarters and randomly selected 6 of the 15 sub-counties and 2 of the 6 town councils. The 2 town councils selected also represent the town boards in Wakiso district.

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2.2 DATA COLLECTION AND ANALySISTo realise the objectives of the audit, data was collected through review of documentation, interviews, questionnaires and participatory gender audit (PGA) workshops as outlined below:

To assess existing gender expertise, competence and capacity-building in

Wakiso district District work plans and budgets were reviewed to establish whether the district staff had planned and budgeted for gender activities; interviews and document review were then conducted to establish the existing gender expertise as well as the roles of the gender focal point persons. Further Audit conducted interviews, participatory audit workshops and reviews of Technical Planning Committee (TPC) meeting minutes to confirm that sensitization (capacity-building) of staff was undertaken as required. To conclude on the expected outcome of capacity-building, 20 gender concepts were administered to staff during the workshops to assess their level of basic gender knowledge.

To evaluate the extent to which Wakiso district objectives, programming and

implementation cycle, and choice of partner organizations enhances gender

mainstreaming

A review of the Wakiso District Development Plan (DDP) 2010/15, district work plans and budgets, activity and progress reports, and monitoring reports was undertaken to establish the extent to which gender mainstreaming is done at every stage of the district’ activities, that is, in the objectives, programming and implementation cycle. This was done by assessing the extent to which gender analysis, gender disaggregated data, gender indicators and language are used in the above documents.

Thereafter, a comparison was made of the perceived extent of gender mainstreaming with what was noted through document review. Finally, the technical staff in the district were interviewed to obtain information about the observed issues.

Through the Gender Quality Questionnaire, a list of partner organisations the district collaborates with in provision of services was compiled and an assessment undertaken as to whether any of them was specifically dealing with gender and women’s empowerment. This was partly achieved through review of the Memoranda of Understanding (MoUs) signed with the Community Based Organisations (CBOs) and Non-government Organisations (NGOs) to establish whether there were provisions/requirements for gender mainstreaming.

To evaluate Information, knowledge management within Wakiso districtInterviews were conducted with the Community Development Officers (CDOs) and the District Statistician to establish whether gender information is compiled and disseminated to other district staff. During the participatory workshops, the audit team relied on the Hofstede’s Onion13 exercise to establish the most common fora for staff interaction, and

13 The ILO Participatory Gender Audit Manual, 2nd Edition,Page 73

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then sought to find out, through interviews and document review, if gender information was disseminated in these fora. The adequacy of these fora for dissemination of information to all staff (administrative, technical and support) was also assessed.

The District Information Officer was also interviewed to find out how she collaborates with the Gender Focal Point Persons (GFPPs) to obtain information on gender from the responsible officers, and how it is made available to staff and the public, particularly through the district website. The website was reviewed to find out if it was active and whether the uploaded information was gender sensitive.

Interviews were also carried out with the CDOs, District Statistician and District IT Officer on the challenges faced when compiling and disseminating gender information, and efforts to encourage staff and the public to utilize the district website and other fora.

To evaluate the extent to which the staffing and organizational culture of

Wakiso district enhances gender mainstreamingDocument review of the district staff lists for the FY 2012/13 and 2013/14 was carried out and analysis done to assess the trend of representation of men versus women at the different staff levels. These, together with TPC meeting minutes, were relied upon to assess the involvement of men and women in decision-making within the district.

Participatory gender audit workshop exercises of Hofstede’s onion and the 24-hour Clock14 were used to establish how staff interact to accommodate situations arising from gender differences and differing gender roles.

Details of documents reviewed, persons interviewed and workshops held are attached as follows:

1. List of documents reviewed and purpose (Appendix II)

2. Persons interviewed and reasons for the interview (Appendix III)

3. Schedule showing PGA Workshops undertaken (Appendix IV)

4. Agenda for the workshops (Appendix V)

5. Participatory gender audit questionnaire administered (Appendix XII)

14The ILO Participatory Gender Audit Manual2nd Edition page 59

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CHAPTER THREE

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CHAPTER THREE

SySTEMS AND PROCESS DESCRIPTION

3.1 SySTEMS DESCRIPTION

Roles and responsibilities of key playersThe following are the key players in the process of gender mainstreaming within Wakiso district.

Wakiso District Local Government

Accounting Officers, (CAO, Subcounty Chief and Town Clerks) The Accounting Officer is responsible for mainstreaming gender in all the districts activities. He or She ensures that gender mainstreaming is promoted in all district activities during planning, budgeting, implementation; and ensures that mechanisms are in place to monitor and report on performance regarding gender mainstreaming. The Accounting Officer identifies gender champions (Gender Focal Point Persons) and ensures that the members of staff in the district are equipped with the necessary skills to allow them mainstream gender across all district activities.

Community Development Officers (CDO)The CDO is responsible for ensuring that all departments have mainstreamed gender in their activities by ensuring that all departments, subcounties and town councils budget and design gender activities, implement, monitor, evaluate and report on their performance; facilitates coordination with other stakeholders, including NGOs and the private sector. The CDO is also required to spearhead annual monitoring of gender activities and gender impact studies; provide technical guidance on gender matters to

district staff and disseminate gender materials.

Heads of DepartmentsThe Head of Department (HOD) is responsible for mainstreaming gender in the activities of the department. He or She ensures that the members of staff in the department are equipped with gender mainstreaming skills.

Ministry of Gender, Labour and Social Development (MoGLSD) The MoGLSD provides policy direction and advisory services on gender to the district. MoGLSD also supports the district in building the capacity of its staff and conducts periodic monitoring of gender mainstreaming undertakings.

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Ministry of Local Government (MoLG) The MoLG provides policy and oversight on administration, to Wakiso district. The Ministry, during its annual assessment of the district compliance with the minimum national standards on service delivery, also monitors the performance of gender mainstreaming activities in the district since it is one of the criteria for assessment.

Ministry of Finance, Planning and Economic Development (MoFPED) The MoFPED provides guidelines on the incorporation of gender and equity considerations in all district budgets. It also supports capacity-building in gender and equity budgeting through periodic training and provision of relevant literature.

3.2 PROCESS DESCRIPTION

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CHAPTER FOUR

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CHAPTER FOUR

FINDINGS, CONCLUSIONS AND RECOMMENDATIONSThis chapter presents the findings, conclusions and recommendations of the audit. It highlights the various challenges faced by Wakiso District in mainstreaming gender and suggests recommendations on how gender mainstreaming can be improved.

4.1 EXISTING GENDER EXPERTISE, COMPETENCE AND CAPACITy BUILDINGAccording to the Uganda Gender Policy (2007)3, Wakiso district is required to build the capacity of staff and leadership in gender mainstreaming.

4.1.1 Existing Gender ExpertiseThrough document review and interviews, it was noted that three members of staff from the Department of Community Based Services had been trained from Makerere University School of Women and Gender Studies sponsored by MoGLSD in 20104. Following this training, Heads of Department were instructed by the CAO to appoint Gender Focal Point Persons (GFPPs) within their departments to work with the trained staff to ensure that gender issues are mainstreamed. GFPPs form a link between the department and the trained staffs, provide first-line guidance to departmental staff on gender issues, and coordinate the dissemination of gender information.

Through an interview, the CDO indicated that out of the 10 departments in the district (Refer to Appendix I), seven (Administration, Education, Production, Community Based Services, Finance, Natural Resources and Works) had designated GFPPs. However, this was not supported with any evidence in the form of appointment letters, terms of reference and activity reports. Furthermore, through the participatory workshops involving 212 participants, it was noted that no participant in these departments was aware of the existence of GFPPs.

In addition, there was no evidence in form of training and mentorship minutes that the trained staff had worked with the departments to mainstream gender in their work plans and budgets for the years under review. The departmental work plans and budgets also contained no gender analysis that would enable them to identify gender issues and come up with interventions to address them.

The failure by the district to ensure that all departments have officially appointed GFPPs and that trained staff share the knowledge obtained is an indication of non-prioritization of gender issues by the district. This, in turn, leads to gender issues not being mainstreamed in planning, implementation and monitoring of district projects and programs.

15 Uganda Gender Policy, 2007; Page 2516 OAG, 2012: Government’s Efforts to achieve Gender Equality as coordinated by MoGLSD; pg. 34

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M A R C H 2 0 1 5

Management responseThe trained officers have guided health, works, education, production departments to undertake gender analysis and budgeting to address the following gender issues: improved sanitation in schools; improved accessibility to health services (repair of 3 ambulances); improved accessibility to family planning services; construction of maternity and surgical wards in Namayumba IV and Bussi III; improved accessibility to markets through repair and opening up 166.7 kms of roads in hard to reach areas; operationalizing the district human rights committee to address issues of inequality and domestic violence; empowering local leaders through an exchange visit to Western Uganda to acquire skills and knowledge on best agricultural practices in order to boost household incomes and adopt less labour intensive technologies; construction of 56 water sources to reduce the triple burden women face; encouraging men to enrol for adult learning; and creating awareness about prostate cancer among men at Namayumba Health centre.

During the participatory workshops, participants were not aware of the existence of GFPPs, this is largely due to the attitude of many staff who always associate gender with women and do believe it is an issue for Community Based Services (CBS). The majority of the staff have only come to know of the gender concept at the current workplace because it is not taught at secondary level.

Audit CommentAudit notes the activities highlighted above. However, audit could not verify that these activities were arrived at as a result of a conscious gender analysis by the respective departments. There was lack of documentation relating to the gender issues identified, corresponding interventions to address them, and indicators to enable the monitoring of their implementation.

The district has not fully exploited the knowledge acquired by the trained staff. There are no concrete avenues for transfer of skills acquired by these staff to other district officials, which is affecting gender mainstreaming in the district.

4.1.2 Training and capacity buildingThrough document review, interviews and workshop exercises, it was established that the district has always budgeted for training of staff in gender mainstreaming; however no funds have been released for the trainings. It was noted that the district partner organizations, namely: Forum for Women in Democracy (FOWODE), Advocates Coalition for Development and Environment (ACODE) and Ministry of Finance, Planning and Economic Development (MoFPED) have carried out some gender awareness trainings to sensitize some district staff; during these trainings, one or two members of staff from the CDO’s office were invited to facilitate in the trainings.

The district has not financed trainings from its own resources to ensure capacity- building for its staff. If the district were committing some of its funds for gender training, it would show good will, prioritization, commitment, and sustainability in ensuring gender mainstreaming among support partners and the district staff. Furthermore, through the participatory gender audit workshops conducted during the audit, all the 212

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17ILO (2012): PGA Manual (Second Edition); Page 6418 Wakiso DDP 2010/15; page v

participants indicated that they had not received gender training in the two financial years(2012/13 & 2013/14) under review.

The district management explained that funding for gender trainings was not released because of other priority areas where funding is needed most.

As a result of limited capacity-building and lack of training, the staff do not have adequate basic knowledge on gender which has affected their level of gender awareness and gender mainstreaming. This was evidenced during the PGA workshops where staff, who were required to match 20 basic gender concepts with their definitions (an indication of basic gender knowledge)17, scored on average 47% which audit considers to be below average. Details of the scores per department/sub-county are shown in Appendix VI.

Management responseTraining for the generation of gender disaggregated data for CDOs and Civil Society Organisations (CSOs) was held on 28/03/2013. However, this is a very timely observation and wake-up call for all sectors to prioritize gender issues.

The District will ensure that every financial year local leaders, technocrats and development partners benefit from gender training using the capacity building grant.

Audit CommentOn review of the training report referred to by management, it was observed that this training targeted Civil Society Organisations (CSOs) and not district staff.

The capacity of gender mainstreaming at the district management structures is yet to be built to include basic knowledge and specific tools for mainstreaming gender.

RecommendationsThe district should put in place • adequate measures, with clear outputs and indicators, to ensure that the trained staff pass on the expertise acquired to other staff.

The district should appoint GFPPs • for all departments and subcounties to facilitate basic training on matters of gender so as ensure gender mainstreaming within the district.

Management should ensure the • implementation of the commitment made above to utilise funding from the capacity building grant for training in gender mainstreaming.

4.2 GENDER MAINSTREAMING IN WAKISO DISTRICT: OBJECTIVES, PROGRAMMING AND IMPLEMENTATION CyCLES, AND CHOICE OF PARTNER ORGANISATIONS

The Uganda Gender Policy (UGP) requires Local Governments (LGs) to translate the UGP into their administrative unit specific strategies and activities.

4.2.1 Gender in Wakiso District

Objectives and PoliciesWakiso district and its subcounties have explicitly expressed the promotion of gender equality and equity as one of thier priority objectives.18

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The district, with support from FOWODE, developed a District Gender Policy in 2014 to ensure that a gender perspective is reflected in all the organizational practices, policies and programs of the district. However, this policy is yet to be finalised and implemented.

In an interview with FOWODE officials, it was indicated that the policy had been approved by the District Council in December 2014 and had been sent for printing.

4.2.2 Gender in Wakiso District Plans, Budgets and ImplementationThe planning documents indicated that the district planned to implement the following gender specific activities in the two years under review:

1 Appoint and train Gender focal persons for all district departments.

2. Mentoring staff at the district level to mainstream gender issues in plans and budgets.

3. Disseminating gender materials to district departments and CSOs.

4. Guiding district departments, Town Councils and Subcounties to undertake gender budgeting.

5. Carrying out gender mainstreaming of district and 21 LLGs projects for FY 2012/13 and FY 2013/14.

6. Hold workshops in Masulita, Namayumba, Bussi LLGs to train technical staff and LCIII executive about gender mainstreaming funded by Concerned for Children and Women Empowerment (COFCAWE).

It was established from document review and interviews with key staff at the district, subcounty and town councils that only three activities (Activities 3, 4 and 6) were fully or partially carried out, as detailed in Table 1 below.

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Table 1: Management responses to issues raised and corresponding audit remarks

Planned activities Status according to Management Audit remarks

Mentoring staff at

the District level to

mainstream gender issues

in plans and budgets.

This was done in health, works and

production departments and reflected in

activities as highlighted in 4.1.1 above.

As earlier stated, there was

no evidence that this activity

was undertaken.

Guiding District

departments, Town

councils and subcounties

to undertake gender

budgeting.

7 LLGs were mentored on gender

mainstreaming.

Partially done.

No district departments

were guided in the period

under review.

The subcounties of

Nangabo, Gombe, kakiri,

Nsangi, Wakiso, Mende and

Kakiro Town Councils were

supported in FY 2012/13.

However, no Town councils

or subcounties were

supported in 2013/14.

Further still, there was

no evidence that the LLGs

mainstreamed gender

in their work plans and

budgets even after they were

mentored.

Carrying out gender

mainstreaming of the

district and 21 LLG

projects for FY 2012/13,

2013/14

Although there is a gap in this area,

there has been attempt of ensuring that

1/3 of the composition of roads, school,

health management and water user

committees comprise of a marginalized

category, women. In all 100 youth groups

that benefited from the youth livelihood

program, the District resolved that female

comprise of 30% in every group at planning

phase and this was effected.

Audit notes that the

requirements referred to

by management (1/3 and

30%) were made by the line

ministries and the Youth

Livelihood Programme,

respectively. The district

did not come up with its

own interventions to further

gender mainstreaming in its

various projects.

Source: Document review and Wakiso district management responses

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For activities not undertaken or partially done, management cited lack of funding as the cause. However, a review of the district financial statements showed that for 2012/13 and 2013/14, the district received 100% and 76% respectively of all the budgeted funding earmarked for the community development programme which is responsible for gender activities. This would have enabled the department to carry out some, if not all of the planned gender specific activities mentioned above. This points to lack of prioritisation of gender activities.

Failure to prioritise and allocate adequate funds for gender activities by the district limits gender mainstreaming in the district.

RecommendationThe district should prioritize gender issues to ensure that activities are adequately funded and implemented as planned.

4.2.3 Monitoring Gender EqualityInternal monitoring of all district activities is done by Councillors and technical staff (Heads of Department and the planning unit) within the district, while external monitoring is conducted by the Ministry of Local Government (MoLG) through the local government assessments; and the Ministry of Gender, Labour & Social Development (MoGLSD), as the central government ministry (UGP section 7.0) responsible for the promotion of gender mainstreaming through policy formulation and periodic monitoring visits.

It was established from the review of the quarterly and annual monitoring reports, that whereas internal monitoring was carried out, it did not report on the gender implications of projects and programmes implemented by the district. In addition, the monitoring reports had no gender indicators for measuring and tracking gender performance.

Lack of gender monitoring indicators is a result of failure to undertake detailed gender analysis during the planning phase to allow for the development of these indicators.

A gender analysis shows the breakdown of gender risks/issues identified per department and a proposed intervention to address them. Although gender analysis should be done as often as possible since gender issues keep changing, it was noted that a gender analysis was last done in the financial year 2010/11.

Monitoring of projects and programmes without gender monitoring indicators makes it difficult to critically identify and analyse their performance in matters relating to gender. It was therefore not possible to ascertain levels of gender representation among the beneficiaries to assess the performance of gender mainstreaming in government programmes/projects of Wakiso district.

In addition, the MoLG uses eight (8) criteria to measure the performance of local governments on gender mainstreaming as indicated in Appendix X. According to the MoLG annual assessment exercise for the years under review, the district had performed well.

However, analysis of district documentation indicated that there was no gender disaggregated data, no monitoring indicators, and no gender specific needs had been identified during the capacity needs assessment. In addition, apart from releases for Women’s Day celebrations, no funds were released for gender activities. Furthermore as explained above, there was no evidence that GFPPs were appointed and posted, although the CAO had instructed Heads of Departments to formally appoint GFPPs for their respective departments. This therefore raises questions over the criteria and basis of assessment used by the Ministry of Local Government.

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We also established through interviews with CDOs and PGA workshop participants that MoGLSD had not conducted any monitoring visit to Wakiso district during the years under review.

Inadequate monitoring has hampered the tracking of gender performance gaps and identification of corrective actions by the district to ensure that gender is mainstreamed.

Management responseManagement notes audit observation that there were no gender implications in the reports and monitoring indicators. This will be addressed in subsequent activities.

Management also acknowledges that Gender Analysis was last done in 2010/11 during the development of the current District Development Plan (DDP). However, the DDP is due for review this year (2015/16) and a gender analysis will be carried out as part of this review.

Audit CommentMonitoring of gender mainstreaming in Wakiso district was not adequate. Internal monitoring was handicapped by lack of gender monitoring indicators. Externally, MoGLSD did not monitor as expected, while the scores by MoLG were not justified in the day-to-day activities and documents of the district.

Recommendations• The district should carry out comprehensive

annual gender analysis during the planning phase to allow the development of gender monitoring indicators.

• Monitoring by the various monitoring agencies should, in addition to analysing the activities planned to address gender mainstreaming, make an assessment of the level of implementation and should encompass the key indicators affecting gender mainstreaming.

4.2.4 District working partnersThe Uganda Gender Policy requires2 Wakiso district to collaborate with gender and women’s empowerment organizations, including: Women Councils, CBOs and NGOs on matters of gender mainstreaming and women’s empowerment.

It was noted that Wakiso district and its subcounties coordinate with many government organizations, including: MoGLSD, MoFPED, Women Councils, NGOs and CBOs. It was further noted that Wakiso partnered with one organisation directly working towards women’s empowerment (FOWODE) which has resulted into support for the development of a gender policy for Wakiso district.

The district had also signed Memoranda of Understanding (MoUs) with 18 partner organizations for collaboration on specific projects in education and health. Signing of MoUs ensures accountability and effective follow up on milestones agreed upon.

However, scrutiny of the 18 MoUs showed that none of the MoUs contained commitments/ requirements to ensure gender analysis, gender mainstreaming, sex disaggregation of data, or use of other such gender indicators.

19 Page 25

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Lack of clear commitments/requirements on gender in the MoUs denies the district an avenue for enhancing gender mainstreaming in its programmes and activities.

Management response

Noted. The district will ensure that MOUs signed with partners contain commitments to ensure gender analysis, gender mainstreaming and sex disaggregation of data.

Audit CommentAlthough the objectives of Wakiso district enhance gender mainstreaming, the programming lacks detailed gender analysis of the gender gaps, identification and funding of strategies, and development of gender indicators to ensure proper monitoring of implemented programs. Although the district has developed collaborations with many NGOs, Government ministries, departments, agencies and CBOs, these lack clear gender commitments to ensure a proper gender accountability framework.

RecommendationThe district should ensure that all MoUs signed include commitments on gender as this further helps the district to make a conscious effort to address gender mainstreaming and meet its objectives.

4.3 INFORMATION AND KNOWLEDGE MANAGEMENT WITHIN WAKISO

4.3.1 Sex disaggregated data It was noted through document review that there are major gaps in the collection and analysis of gender data. The district does not consistently communicate a minimum set of sex disaggregated data to be used by the departments and subcounties when reporting. This creates ambiguity in relation to what is really expected. Through interviews with various staff, it was also noted that the reasons for having a systematic process of collecting and analysing data is not widely understood by staff. Whereas data (for example list of beneficiaries for services rendered) is available it is not disaggregated into how many men, women, children, the disabled and various age brackets are accessing, participating and benefiting from services that would allow proper development of interventions to address gender inequalities. Such information would guide the district in identifying the gender inequalities that exist and further develop interventions and programs to monitor and bridge the inequalities.

Management responseAlthough an attempt is made to disaggregate data, especially staff lists, PLE performance, beneficiaries of farmers under NAADs, annual Outpatient attendance report, Case book management register for probation officer, the district finds it hard to generate sex disaggregated data for parameters that were not captured during the last population census because of the resources involved.

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Audit Comment

The above attempt is not an initiative of the district but rather a requirement by the line ministries or authorities.

We believe that the collection of sex-disaggregated data can be done for all district activities at no extra cost. It would involve conducting analysis to determine what relevant sex-disaggregated data can be collected for every planned activity. This could be done by the staff trained in gender in collaboration with the District Statistician and relevant technical officers in respective departments. The District Statistician would then guide departments in improving their day-to-day data collection tools to enable them to capture relevant sex-disaggregated data in line with the analysis undertaken.

Wakiso district has failed to institutionalize the collection and use of gender disaggregated data among district staff despite the presence of staff trained in gender and a district statistician. Mainstreaming the collection and use of sex disaggregated data during the planning stages would allow for the identification of gender inequalities across communities, develop interventions and design gender monitoring indicators for all district programmes and activities.

RecommendationThe district should ensure proper collection and use of sex disaggregated data across all departments.

4.3.2 Fora for staff interactionIt is important to disseminate information on gender to staff and other stakeholders to ensure a common understanding and awareness of gender principles. Effective dissemination would necessitate relying on fora that bring together many staff, is affordable or easily accessible, for example: meetings, websites, resource centres, notice boards.

During the PGA workshops conducted by the Audit team, 55% and 88% of workshop participants from Higher and Lower Local Governments, respectively, stated that district staff mainly meet during Technical Planning Committee (TPC) and other official staff meetings, as shown in Figure 1 below.

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Figure 1: Showing fora where Wakiso District Staff interact

District (Higher Local Government) Staff Lower Local Government Staff

Source: OAG analysis of participants’ responses from the Hofstede’s Onion exercise.

TPC minutes reviewed for the two years under review indicated that each department presented progress of work done, challenges encountered, and planned activities. However, during these meetings, there was neither discussion of gender issues nor submissions on extent of gender mainstreaming. Minutes for other staff meetings were not availed.

Failure to discuss gender issues/ mainstreaming during meetings was largely due to perceptions by most staff (72% at the HLG, and 69% at the LLG) that they were not competent enough to advise others on gender issues.20Audit, however, observed that even the remaining staff (28% at the HLG, and 31% at the LLG), including CDOs, who believed they could ably advise others on gender mainstreaming, did not discuss gender related issues during meetings.21

Lack of discussion in such high level meetings about gender issues within each sector and strategies to bridge the gender gaps results in lack of awareness and appreciation of gender issues among staff and ultimately non prioritization.

Management responseGender issues were shared in TPC during the discussion of the Gender Policy.

Audit CommentDiscussion of gender issues should take place in all TPC meetings, and not only in the one mentioned by Management. This would improve chances of mainstreaming gender in all activities, across all departments. Furthermore, minutes of the TPC meeting referred to by Management were not provided for verification.

Wakiso district has not fully utilised the opportunity that TPC and other staff meetings present to discuss and disseminate gender issues and yet they are the main forum through which the majority of staff interact.

20Results from analysis of Gender Quality Questionnaires administered to Wakiso district staff21 Ibid.

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RecommendationsWakiso district should undertake • capacity building of staff on gender mainstreaming to enhance their confidence to adequately discuss gender issues during meetings.

The Management of Wakiso district • should encourage sharing and discussion of gender issues and experiences at staff meetings

4.3.3 Wakiso District WebsiteA website is a good avenue for sharing gender data and information to ensure proper knowledge sharing across different stakeholders. Wakiso District has an official website (www.wakiso.go.ug). As at 11th March, 2015, the site was up and running, with information from different departments uploaded.

Generally, the photographs on the web site reflected gender balance. However, the written information on the website was largely gender-neutral. It reflected no gender analysis, was not disaggregated by sex and lacked substantive references to work on gender equality. The web site also lacked information/ literature on gender, such as: the Uganda Gender Policy, 2007, by MoGLSD; the Gender and Equity Budgeting guidelines for Higher and Lower Local Government by MoFPED; and sector-specific gender guidelines/materials by the Ministries of Public Service, Education, Health, Works, Water and Environment and Agriculture, among others. There were also no links to other sources of information on gender issues so as to increase accessibility.

Websites offer a great opportunity for Wakiso District to disseminate information on gender issues to its own staff, as well as the general public. By not uploading

information on gender, Wakiso has failed to exploit this opportunity, especially given that during workshops, 90% of most staff reported that printed information on gender was very hard to come by.

Management responseManagement notes the team’s observation. Efforts will be made to upload relevant, gender-sensitive information and materials to the website.

4.3.4 Resource CentreHaving a resource centre is a good practice to ensure knowledge sharing among staff. It was observed that Wakiso district lacks a resource centre. This is a missed opportunity for dissemination of information on gender. A resource centre would be a go-to area for access to information on a range of issues. It would provide staff, stakeholders and the general public access to a common centre where publications and other information are organized, archived and shared.

Through interview, the CAO acknowledged the absence of a resource centre because it had hitherto not been prioritized. However, he stated that establishing it was one of his priorities in 2015.

Management responseThis is noted and will be addressed by the District Planning unit. Currently, individual sectors have data banks.

Audit commentAudit notes that data banks may not be as effective as the district resource centre in the dissemination of gender information. With a resource centre information is readily available to any staff who may require it.

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Due to limited avenues for dissemination of information, there is general lack of gender information and knowledge management in Wakiso district.

RecommendationsThe district should ensure that relevant gender information is made available to staff both on the website and in the resource centre once it is established.

4.3.5 Products and public imageVisibility and advocacy on gender issues among constituents and the general public is essential in the promotion of gender mainstreaming. It is important for Wakiso district to communicate a gender-sensitive message to the public and other stakeholders through promotional documents produced for public consumption.

Through analysis of Wakiso district promotional materials, such as: the state of Wakiso District quarterly report, the annual HIV/AIDS Awareness magazine, Wakiso district 10-year progress magazine and district fliers, it was noted that, generally, these documents did not project Wakiso district as gender sensitive, and there were no references to issues of gender equality as relating to the district.

Furthermore, the publications mainly used gender-neutral language as they did not explicitly address issues related to gender and equality between sexes or address discrimination against women and girls.

With the exception of the HIV/AIDS awareness Magazine- 2013, the objectives, strategies, activities and results of all the other publications provided to audit were not defined in a gender-specific manner. An attempt was made in the above document (page 6), where it is stated under the 3rd objective of the 2013/14 HIV work plan “To mitigate underlying social, cultural,

gender and other factors that drive the HIV epidemic.” However, through review of the district work plans for 2013/14, no indication was given on how this was to be done and achieved as illustrated in the document analysis attached (refer to Appendix XI).

Through interviews, the District Information Officer explained that district publications are compiled using information collected from relevant departments, and cannot be gender-sensitive if the information received is not. Further interactions revealed that this officer, who is also charged with the public relations function of the district, has not been trained on gender responsive communication, thus limiting the ability to provide gender sensitive communications.

Failure to communicate gender-sensitive messages through Wakiso district publications reinforces and perpetuates gender stereotypes in society.

Management responseThe District will always try to portray gender sensitive information, however, the image cited in the State of District report as likely to promote stereo type is gender sensitive since it reflects an empowered female (District Forestry Officer) demonstrating to both men and women to adopt modern technology in form of an energy saving stove as opposed to the traditional three stone stove.

One of the flyers, Wakiso District Local Government, Journey of 10 years doesn’t reflect gender neutral information because it has pictures of a marginalized category (women) being empowered through accessing financial support of 10m and also a classroom with almost equal numbers of boys and girls.

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Audit commentThe findings above provide an overall assessment of the language and images used in the different publications. The statements and pictures highlighted only serve as examples to illustrate specific areas of improvement.

Audit notes the picture of the female • Forest officer and its portrayal of a woman in a leadership position demonstrating how to use a modern cooking stove. However, the same picture still reinforces the perception of a woman performing a traditional gender role (cooking) yet changing the status quo of gender roles is one of the key outputs of gender mainstreaming.

Audit notes the portrayal of equal • numbers of both girls and boys in the classroom picture, but maintains that over all, the images used do not portray the publication as gender-sensitive. Regarding the picture of a group receiving a cheque, one cannot know that it was being handed to a women’s group since the caption reads “The beneficiaries of Wakiso micro finance initiative project receiving a cheque of UGX 10M from the LCV chairman.”

Wakiso district communications are generally gender neutral/gender blind, thus implicitly reinforcing traditional gender roles and sex stereotypes.

RecommendationWakiso district should institute measures to ensure that its public communications are gender sensitive.

4.4 STAFFING, DECISION-MAKING AND ORGANIZATIONAL CULTURE OF WAKISO DISTRICT

4.4.1 Staffing and decision-makingAccording to the ILO policy on gender equality, while absolute parity of 50% women and 50% men in professional posts is desirable, 60% of the posts filled either by men or women is also acceptable.22

It was also observed that in April 2011, the Ministry of Public Service developed the gender mainstreaming guidelines that emphasise gender equity, affirmative action, gender sensitive practices and empowerment in human resource management.

Through analysis of Wakiso District staff list, it was noted that the proportion of male and female staff employed by the district was within the acceptable range. Overall, the number of men was 59%, while that of women was 41% at the district (Higher LG), with the Administration department having the highest representation of women, while Community Based Services had the lowest. In the lower local governments, the ratio was 37% female to 63% male, overall, with 10 out of 21 LLGs employing less than the acceptable 40% females. Masuliita Town Council and Nabweru Subcounty had the desirable 50:50 ratio while Bussi with 0% and Mende at 22% had the least number of females as shown in Appendices VII and VIII.

4.4.2 Staff Salaries and Remuneration

The public service salary scale is ranked according to seniority in qualification and experience. The ranking spreads from 1 to 8 in ascending order with 8 being the lowest salary grade. The analysis of the staffing remuneration indicated that out of the 148 staff members at the district

22International LabourOrganisation (2012): A manual for gender audit facilitators: The ILO participatory gender audit methodology, 2nd Edition (Page 9)

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headquarters, only 1 out of the 4 positions in a senior management, and 6 out of the 24 available positions in middle management level are occupied by women, as illustrated in the Table 2 below:

Table 2: Showing the distribution of staff members at the District Headquarters

Salary Scale Women Men Total Women (%) Men (%)

Senior Management (UI) 1 3 4 25 75

Middle Management (U2-U3)

6 18 24 25 75

Graduate & Higher Diploma Entry (U4- U5)

37 31 68 53 47

Lower Level (U6-U8) 18 36 54 33 67

Total 62 88 150 41 59

Source: OAG analysis of Wakiso district staffs list

The table above shows that men have a higher representation in the middle and senior management positions which attract higher salary scales of U1 – U3 while women’s representation is registered highest at the U4-U5 scales.

On further analysis, it was noted that there were fewer female Heads of Department, as compared to their male counterparts. Female Heads of Department were 20% and 32% at the district headquarters and lower local governments, respectively, as shown in Figure

2 below.

Figure 2: Showing number of Male vs. Female Heads of Department

Source: OAG analysis of Wakiso district Human resources data for 2013/14.

Wakiso district is close to achieving parity at entry level; however, as the women transit into decision-making positions, the numbers drop to 20% of women holding decision-making positions in Wakiso district. Promotion is based on the availability of a vacant position and the required competence in terms of performance and improved skills/qualifications.

80%

68%

20%

32%

0%

10%

20%

30%

40%

50%

60%

70%

80%

90%

At Higher LG At Lower LG

Male

Female

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Through interviews with district staff, it was noted that many times women do not apply when positions are advertised and one of the reasons given was because they do not have the necessary qualifications to get the advertised positions. Through the workshops conducted, it was further noted that many women (especially the married) were reported to be reluctant to apply for training opportunities citing fear for their marriages, extended families and losing quality time with their children. Other women are comfortable in their positions and have no ambition or confidence to pursue further studies or apply for a promotion because of the attendant demands and responsibilities.

Management responseSeniority was based on the salary scale implying there is only one female officer at senior level as opposed to 8 men yet according to the district administrative structure; there are 2 female Principal Assistant Secretaries in administrative posts and one female District Information officer. This makes it 4 female officers at senior level and 4 male officers

Audit commentAudit notes seniority as perceived by the district. However, this perception is different from the national standard prescribed by the Ministry of Public Service, where seniority is linked to salary scale, as illustrated by the audit finding.

The proportion of women to men in decision-making positions remains low, meaning that women, who are the majority in the district, are less involved in making decisions that affect their day-to-day life. The status quo may also reinforce the gender stereotypes that perceive men as the main decision makers.

RecommendationThe district should encourage mentorship of the women staff to aspire more for leadership positions to ensure that more women break through the glass ceiling

4.4.3 Family Friendly Working

EnvironmentThe Uganda Public Service Standing Orders (2010) outline the terms and conditions of work for all public servants, including those of the Local governments. The terms and conditions recognise, among others, women’s special needs which are respected at Wakiso district and its lower local governments, including a paid maternity leave of 60 working days, a paid paternity leave of 4 working days, equal pay for equal value of work, transport and field allowances and separate and equipped places of convenience at the work stations.

It was noted that all staff within the district are treated equally and expected working hours are from 8:00am to 5:00pm. Interviews with staff indicated that depending on one’s supervisor, any member staff whether male or female can leave early to attend to a sick child or spouse with special consideration for pregnant women.

It was also noted that all the buildings at Wakiso district headquarters were convenient for the disabled with ramps and this has eased access to government services by the disabled. All toilets were clearly labelled for ease of access to both female and male staff. However, buildings inspected for the Subcounties did not possess such ramps to ease access for the disabled.

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Further still, it was noted through field inspections and interviews that Wakiso district did not have facilities for breast feeding mothers to allow them breastfeed their children at the workplace and many mothers indicated that they had to rush home during lunch time to breast feed their babies. This lack of child care and support facilities at the work place may impact on the performance of the mothers.

Management responseConstruction of structures at the district headquarters is ongoing; this will be addressed in future.

Audit CommentWakiso district has a family-friendly environment notwithstanding the lack of breastfeeding rooms for the breast-feeding staff to ensure efficient fulfilment of both their work duties and family roles as mothers.

RecommendationThe district should ensure that breast feeding rooms are provided at the district premises since construction is still on going.

4.4.4 Sexual HarassmentSexual harassment is a critical subject with restricted discussion among staff, especially those that have suffered it, yet it affects work relations and performance

Interviews with the Human Resource personnel indicated that no cases had been reported to the department making it appear that no sexual harassment takes place in Wakiso district. Through a gender questionnaire administered to the staff, 100% of the respondents confirmed that they had never experienced sexual harassment and do not know anyone who has ever experienced it. However, 74% of

the same respondents listed action taken after experiencing sexual harassment or the action that was taken by the person that experienced sexual harassment.

This contradictory response indicates that although individuals were not willing to share information about the experience itself, some form of sexual harassment could be going on. Audit, however, was not able to deliberate further on these responses due to the sensitivity of the issues involved.

Further discussions with other district staff indicated that the district has neither formal surveillance system nor a framework for reporting sexual harassment cases while other staff were not aware of what constitutes sexual harassment. Through interviews with staff, it was noted that the district has a suggestion box but members have not used it for sexual harassment complaints.

RecommendationThe district should institute formal sexual harassment awareness campaigns and frameworks for reporting sexual harassment if and when it occurs

OVERALL AUDIT CONCLUSION

Wakiso district has achieved positive gains in gender mainstreaming over the years, especially the development of the district gender policy, among others. However, in light of the above findings, institutionalising gender mainstreaming across its activities is still a challenge within the district. More efforts in terms of prioritizing the collection and use of gender disaggregated data, funding gender activities, building capacity of staff in gender matters and monitoring are necessary for the district to achieve its gender mainstreaming objectives.

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GLOSSARy OF TERMSGender mainstreaming A conscious approach by an organisation to take into account gender

equality concerns in all policy, programme, administrative and financial

activities as well as organisational structures and procedures. It is based

on a political decision to work towards and finally achieve the goal of

gender equality within the organisation thus contributing towards

gender equality in the respective society. It involves applying a variety of

measures, providing resources (financial, human, time, information) and

ensuring a process of learning and transformation.

Gender blind policies, plans or

budgets

Refers to those that ignore social differences between men and women.

They assume men and women have the same needs and interests.

Gender specific policies, plans

or budgets

These are policies, plans or budgets in which gender differences sre

recognized, and include appropriate interventions targeting either men

or women.Gender neutral materials Refers to materials which do not explicitly address issues related to

gender and equality between the sexes.

Gender analysis Refers to a tool to diagnose the differences between women and men

regarding their specific activities, conditions, needs, access to and

control over resources, and their access to development benefits and

decision-making. It studies the links between these and other factors in

the larger social, economic, political and environmental context.

Sex-disaggregated data: Collection and use of quantitative and qualitative data by sex (i.e., not

gender) is critical as a basis for gender-sensitive research, analysis,

strategic planning, implementation, monitoring and evaluation of

programmes and projects. The use of these data reveals and clarifies

gender-related issues in areas such as access to and control over

resources, division of labour, violence, mobility and decision-making.

24 hour clock This exercise sensitizes the participants to their time-use and to the

importance of work and family/life balance. Analysing the use of time

available before and after working hours, recognizing the amount of time

spent on family and children (feeding. bathing, homework etc.), non-

remunerated work (gardening, maintenance, cooking, cleaning) and

the leisure time left for the individual reveals a great deal. Traditional

gender roles, time imbalances and deficits are discussed. Access to and

implementation of family-friendly policies in the workplace needs to be

raised.

Hofstede’s Onion Using an onion as a metaphor for the organization:

Participants “peel away” layers of the work unit to reach the core ¾ the

organizational culture.

Participants then identify the aspects of this organizational culture that

promote or hinder gender equality and women’s empowerment within it.

This approach is especially effective with support staff, who are often in

the best position to explain how a work unit functions the way it does.

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APPENDIX I :ORGANISATIONAL STRUCTURE OF WAKISO DISTRICT

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APPENDIX II:LIST OF DOCUMENTS REVIEWED AND PURPOSE

S/N DOCUMENTS REVIEWED PURPOSE (TO OBTAIN :-)

1. Statistical Abstract (UBOS, 2012, 2013)

Projections of Uganda’s population for

2012 (Background information for the

motivation)

2.Manual For Gender Audit Facilitators (Second

Edition)Guidance to facilitate the PGA workshops

3. Wakiso District Five Year Development Plan

Intended plans on gender mainstreaming

and also facilitate in evaluating how far

the plan has been achieved

4. Uganda Gender Policy (2007)Roles and responsibilities of key players;

Assessment criteria

5. VFM Gender Audit Reports 2012, 2013Information on previous gender audits

conducted

6.

Minutes (TPC Meetings 19/08/2011,15/11/2011,

26/04/2012, 06/02/2012, 31/07/2012,19/08/2012,

21/06/2013, 20.09.2013)

To locate any gender issues raised

To also assess the level of gender

mainstreaming in the reporting from the

difference departments

7. Capacity Needs Assessment ReportsTo obtain information on whether staffs’

gender capacity gaps were identified.

8. Millennium Development Goals (2015)Background information on MDG 3-

Promote Gender Equality

9. Work Plans

To assess the extent of gender

mainstreaming in district plans and

budgets

10.Ministerial Policy Statements for FYs 2012/13 and

2013/14Information on budget to Wakiso district

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APPENDIX III: LIST OF INTERVIEWS AND PURPOSE

INTERVIEWEE PURPOSE

Chief Administrative Officer To obtain information on:Planning for gender strategy activities;•Website issue•The performance agreements•

FOWODE Staff To establish the extent of interaction between •the district and partner organisations.To discuss their support and projects with the •districtDiscuss any challenges and opportunities to •improving gender mainstreaming in Wakiso district.

Senior Information Officer Follow up on issues to do with the website and •resource centre

Statistician To establish his role in disaggregating data •

Community Development Officer To triangulate the feedback got from the •workshopsGet to know:•Their routine responsibilities•key gender issues•how much has been done ever since the •gender training was donehow they are supporting the staff at the higher •and lower governments

APPENDIX IV: SCHEDULE SHOWING PGA WORKSHOPS UNDERTAKEN

No.Subcounty / Town council/

DepartmentDate

No. of targeted

participants

No. of

participants

1. Kakiri Subcounty 08th/12/2014 14 19

2. Nabweru Subcounty 09th/12/2014 10 9

3.Gombe, Kira TC, Wakiso TC,

Nangabo, Nsangi, Makindye12th/12/2014 126 62

4.Administration, Finance,

Planning, Procurement6th/01/2015

127 83

5.Works Department, Natural

resources, Education, Health7th/01/ 2015

6. District Councillors 8th/01/2015 39 39

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APPENDIX V: AGENDA FOR THE PGA WORKSHOPS

TIME SESSION SESSION DETAILS/ ACTIVITY

8:00 AM- 9:00 AM - Arrival and Registration of Participants

9:00 AM- 9:30 AM Speeches

Subcounty Chief

Wakiso District Representative

Christine Achom – OAG

9:30 AM- 10:00 AM Session 1 The 24-hour Clock

10:15 AM-10:45 AM Session 2 Gender Quality Questionnaire

10:45 AM-11:15 AM - TEA BREAK

11:20 AM-12:00 PM Session 3 Hofstede’s Onion (Assessing Organisational Culture)

12:00 PM-12:20 PM Session 4 Sexual Harassment documentation

12:20 PM- 1:00 PM Session 6 Assessing Gender Knowledge and awareness

1:00 PM- 2:00 PM - LUNCH BREAK

2:00 PM- 2:45 PM Session 7 Venn Diagram

2:45 PM- 3:30 PM Session 8 Ideal Organisation

3:30 PM- 4:00 PM - TEA BREAK

END

APPENDIX VI: DETAILS OF THE SCORES PER DEPARTMENT/LLG

LOWER LOCAL

GOVERNMENT

(LLG)

SCORE

OUT OF 20

Average

Score (%)DEPARTMENT

SCORE

OUT OF 20

Average Score

(%)

WAKISO TC 9 45 PROCUREMENT 6 30

GOMBE S/C 8 40 PLANNING 14 70

NSANGI 7 35 FINANCE 1 15 75

KAKIRI 2 10 FINANCE 2 10 50

MAKINDYE 10 50 ADMIN 1 13 65

NANGABO 12 60 ADMIN 2 10 50

NABWERU 9 45NATURAL

RESOURCES11 55

WORKS 5 25

EDUCATION 13 65

HEALTH 8 40

PRODUCTION 14 70

41 54

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APPENDIX VII: ANALySIS OF EMPLOyMENT By GENDER AT THE HIGHER LOCAL GOVERNMENT

DEPARTMENT MALE FEMALE PERCENTAGE OFFEMALES

ADMINISTRATION 12 13 52%

COUNCIL 2 8 80%

FINANCE 8 11 58%

WORKS 12 3 20%

PRODUCTION 15 4 21%COMMUNITY BASED SERVICES 5 1 17%

NATURAL RESOURCES 12 10 45%

EDUCATION 10 3 23%

PLANNING UNIT 4 2 33%

PROCUREMENT 2 3 60%

INTERNAL AUDIT 5 3 38%87 61 41%

APPENDIX VIII: ANALySIS OF EMPLOyMENT By GENDER AT THE LOWER LOCAL GOVERNMENTS

SUBCOUNTY/TOWN COUNCIL MALE FEMALE PERCENTAGE of FEMALES

KATABI 10 4 29%MAKINDYE 9 7 44%MASULIITA SC 5 2 29%NABWERU S/C 5 5 50%NAMAYUMBA SC 6 2 25%NANGABO 9 6 40%NSANGI 11 6 35%SSISA 11 7 39%WAKISO S/C 10 7 41%KASANJE 5 4 44%KAKIRI SC 6 5 45%BUSUKUMA 7 5 42%GOMBE 12 4 25%

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APPENDIX IX: ROLE MODELS AT THE HIGHER LOCAL GOVERNMENT

DEPARTMENT ROLE MODEL SCORE

PRODUCTION DCO 2

CAO 2

SENIOR ENVIRONMENT OFFICER 1

HEALTH DHO 1

IIC 1

MIDWIFE 1

LAB ASSISTANT 1

DEPUTY DHO 2

NURSING OFFICER 1

NATURAL RESOURCES

CAO 2

PAS 1

DNRO 1

EDUCATION DEO 3

CAO 4

WORKS DISTRICT ENGINEER 2

PLANNING CAO 3

SENIOR POPULATION OFFICER 1

PROCUREMENT LCV 2

RDC 1

PPO PDU 3

FINANCE SENIOR ACCOUNTS ASSISTANT 2

CAO 4

CFO 7

AG. DISTRICT ENGINEER 2

RDC 1

DAO 1

ADMINISTRATION CAO 8

CFO 2

SECRETARY GENDER 1

SENIOR OFFICE SUPERVISOR 1

OFFICE ATTENDANT 2

PAS 1&2 5

SIO 1

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APPENDIX X:LOCAL GOVERNMENT ASSESSMENT CRITERIA FOR GENDER MAINSTREAMING

S/N ASSESSMENT CRITERIA

1.Annual budget reflects budgetary allocations to address gender strategies that were raised in district plans

2.Evidence that the district/municipality has financed the gender issues identified by DDP during planning, monitoring and mentoring activities

3.Evidence that gender specific needs were identified and analysed during the capacity building needs assessment

4.Specific capacity enhancement strategies and activities for Community Services Department and Gender Focal Point Person in the current FY linked to addressing inequalities between men and women

5.Skills enhancement training for women, youth and PWD councilors undertaken during the previous FY aimed at reducing the inequalities between men and women

6.Gender awareness training (addressing inequalities between men and women) planned for and undertaken during the previous FY

7.Evidence that Gender Focal Point Person identified gender issues, designed strategies and mentored other staff on how to deal with inequalities between men and women

8.No Evidence that the Gender Focal Point Person has disseminated gender information (either received from the centre or developed within the LG) to technical as well as political leaders in the LG

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AP

PEN

DIX

XI:

AN

ALy

SIS

OF

GEN

DER

IN W

AK

ISO

DIS

TRIC

T’S

PU

BLI

CATI

ON

S

DO

CU

MEN

TC

RIT

ERIA

FO

R D

OC

UM

ENT

AN

ALY

SIS

The

over

view

proj

ects

Wak

iso

as g

ende

r-

sens

itiv

e.

Obj

ecti

ves,

stra

tegi

es, a

ctiv

itie

s

or r

esul

ts a

re

defin

ed in

a g

ende

r-

spec

ific

man

ner.

The

prod

uct

incl

udes

cre

dibl

e

refe

renc

es to

issu

es o

f gen

der

equa

lity

as

rela

ting

toW

akis

o

Ther

e is

a r

eal

effo

rt to

elim

inat

e

gend

er b

ias

in th

e

over

all m

essa

ge o

f

the

publ

icat

ion.

The

publ

icat

ion

cons

iste

ntly

use

s

gend

er-s

ensi

tive

lang

uage

.

Gra

phic

s gi

ve a

gend

er-

sens

itiv

e

bala

nced

look

.

Pic

ture

s us

ed s

how

an

equa

l num

ber

of w

omen

and

men

rep

rese

nted

or e

ngag

ed in

sim

ilar

acti

viti

es.

Stat

e of

Wak

iso

Dis

tric

t

Rep

ort 2

014

No.

Tota

l pop

ulat

ion

figur

e is

disa

ggre

gate

d.

All

oth

er d

ata

e.g

staf

fing,

no.

of s

tude

nts

in

scho

ols,

etc

; are

not.

No.

No.

No.

Use

s ge

nder

-

neut

ral l

angu

age

Yes.

Mos

t do.

How

ever

, men

and

wom

en te

nd to

appe

ar in

trad

itio

nal

role

s, a

nd th

is m

ay

rein

forc

e st

ereo

type

s.

e.g.

on

pg. 2

4, a

wom

an

dem

onst

rate

s ho

w to

use

a co

okin

g st

ove,

whi

le o

n pg

. 29,

men

are

show

n do

ing

mec

hani

cal

wor

k.

HIV

/AID

S

Awar

enes

s

Mag

azin

e-

Wak

iso

Dis

tric

t 201

3

No.

On

pg.6

, it i

s st

ated

that

Obj

ectiv

e 3

of

the

2013

/14

HIV

Wor

k pl

an is

“To

miti

gate

und

erly

ing

soci

al, c

ultu

ral,

gend

er a

nd o

ther

fact

ors

that

dri

ve th

e

HIV

epi

dem

ic.”

No

indi

catio

n is

give

n on

how

this

will

be

done

.

No.

No.

Use

s ge

nder

-

neut

ral l

angu

age

Yes.

Ye

s.

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DO

CU

MEN

TC

RIT

ERIA

FO

R D

OC

UM

ENT

AN

ALY

SIS

Wak

iso-

10

year

s of

pr

ogre

ss-

2001

-201

1

No.

N

o.N

o.N

o.U

ses

gend

er-

neut

ral

lang

uage

No.

Mos

tly

mas

culin

e m

essa

ge.

For

inst

ance

, th

e pi

ctur

es

depi

ct m

ales

co

mm

issi

onin

g va

riou

s pr

ojec

ts,

and

do n

ot s

how

w

omen

in p

ositi

ons

of p

ower

, infl

uenc

e an

d co

ntro

l. Th

is

may

ent

renc

h th

e st

ereo

type

that

su

ch p

ositi

ons

belo

ng to

men

al

one.

No.

Mos

tly m

ales

Flye

r-

Wak

iso

DLG

Jo

urne

y of

10

year

s

No.

N/A

.N

o.N

o.U

ses

gend

er-

neut

ral

lang

uage

No.

Mos

tly

mas

culin

e.N

o. M

ostly

mal

es

Wak

iso

dist

rict

In

form

atio

n fly

er

No.

N

/AN

o.N

o.U

ses

gend

er-

neut

ral

lang

uage

No

imag

es o

f pe

ople

are

use

d.N

ot a

pplic

able

.

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APPENDIX XII: GENDER QUALITY QUESTIONNAIRE FOR WAKISO LOWER LOCAL GOVERNMENT STAFF

Sex:

Age:

What is your position/post?

Has Wakiso District developed guidelines for mainstreaming gender?1.

YES

NO

If YES, answer questions 2 and 3 as well. If NO, kindly skip to question 4 onwards.

How well informed are you about the contents of the above guidelines?2.

Not informed at all

Partially informed

Well informed

How important do you think the gender guidelines are for the achievement of your Sub-3. county/Town Council’s strategic and operational objectives?

Not important

Important

Very important

Please give reasons for your answer: ………………………………………………………………………………………………………………………………………………

Does your Sub-county/Town Council provide you with sufficient guidance and 4. information on how to identify and address gender issues in all your activities?

YES

NO

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Are there opportunities to allow for the free flow and exchange of information and 5. experiences within the Sub-county/Town Council and between staff on Gender issues?

YES

NO

If YES, how adequate are these opportunities? Not adequate

Partially adequate

Very adequate

As an employee of your Sub-county/Town Council, you are expected to introduce gender 6. issues in different stages of activity/project design and implementation at your level. How well do you fulfill these expectations?

Very well

Fairly well

Inadequately

Do you believe you have enough knowledge of the issues involved in mainstreaming for 7. gender equality to advise others?

YES, I have adequate knowledge

NO, I do not have adequate knowledge

PARTNER ORGANISATIONS

Which are the major organizations/ entities you work with in your day-to-day activities? 8. (NOTE: These may be Government Ministries, Agencies and Departments, Local Government departments, NGOs, Community-based organizations (CBOs), or Faith-based organizations)

AFTER LISTING ALL, PLEASE CIRCLE THOSE YOU BELIEVE ARE THE MOST IMPORTANT

Government bodies:…………………………………………………………………………………………………NGOs:……………………………………………………………………………………………………………………CBOs:……………………………………………………………………………………………………………………Faith-based organizations: :………………………………………………………………………………

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SUPPORT ON GENDER MAINSTREAMINGHave you received any support from the District/CDO’s office on gender mainstreaming 9.

in the last two years? YES/NO………………………………

If YES, please give details on the kind of support received.

Have you interacted with officials from Ministry of Gender, Labour and Social 10. Development on gender mainstreaming in the last two years? YES/NO………………………………

If YES, please give details.

INFORMATION MANAGEMENTDo you know of the existence of the Official Website of Wakiso district?11.

YES/NO………………………………

How often do you visit the above web site?12.

More than once a week

Once a week

Once every 2 weeks

Once every month

Others………………………………………….

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13. Are you aware that Wakiso District has an official Facebook page?

YES/NO………………………………

14. How often do you visit the above Facebook page?

More than once a week

Once a week

Once every 2 weeks

Once every month

Others………………………………………….

SEXUAL HARASSMENT15. What actions would you consider as sexual harassment?

…………………………………………………………………………………………………………………………………………………………………………………………………………………………………………………………………………………………….16. Have you ever experienced sexual harassment, or do you know any town council/ sub-county staff member who has experienced sexual harassment? If YES, briefly provide details.

…………………………………………………………………………………………………………………………………………...........…………………………………………………………………………………………………………………………………………...........…………………………………………………………………………………………………………………………………………...........…………………………………………………………………………………………………………………………………………...........17. How did you deal with this situation? E.g. confronting the offender, reporting to your boss, informing the police, etc.

…………………………………………………………………………………………………………………………………………...........…………………………………………………………………………………………………………………………………………...........

18. What action was taken?…………………………………………………………………………………………………………………………………………...........…………………………………………………………………………………………………………………………………………...........

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OR

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OFFICE OF THE AUDITOR GENERALOFFICE OF THE AUDITOR GENERAL

P.O. Box 7083, Kampala.Tel. +256 414 344 340 Fax: +256 417 336 000

E-mail: [email protected],go.ug

Documents

THE REPUBLIC OF UGANDA - OAG · NGOs Non-Governmental Organizations PA Performance Appraisal ... Gender mainstreaming in the objectives of the district, programming and implementation